Responses and adaptation strategies of commercial and charter fishers to zoning changes in the Great Barrier Reef Marine Park

Fishers' responses to changes in resource access through the imposition of marine protected areas can be a critical factor influencing the likelihood of achieving management objectives.Face-to-face interviews with 114 commercial and charter fishers were conducted to investigate their responses and adaptation strategies to the increase in the size and number of no-take zones imposed by the 2004 Great Barrier Reef Marine Park zoning plan. Despite holding positive attitudes towards marine biodiversity protection, fishers were generally unsupportive of the new zoning plan 5 years after its implementation. Fishers' lack of support was related to the perception that they had not been adequately engaged in the rezoning process and the perception of significant impacts of the zoning plan on fishing businesses. Fishers generally believed that the new zoning plan had a negative impact on their access to productive fishing areas, the numbers of fish they catch, the profitability of their fishing business, and their personal income. In response to the new no-take zones, fishers tended to redistribute their fishing activity to locations closer to their home port, and to locations already known to them through their previous fishing, resulting in an increase in high density fishing locations within the park. Despite the impacts that fishers experienced, most reported that they have adapted their fishing activity and fishing business at least moderately well to the new zoning plan, suggesting that many of the impacts experienced by fishers might be short-term and may decline over time as fishers learn to adapt to the new zoning system. The information provided should prove valuable as a baseline for continued monitoring of the costs and benefits of the Great Barrier Reef Marine Park rezoning into the future.     

Developing a long-term outlook for the Great Barrier Reef,Australia: A framework for adaptive management reporting underpinning an ecosystem-based management approach

The Great Barrier Reef Outlook Report 2009 was the first produced in response to a newly legislated requirement for five-yearly reports on the status of and outlook for the Great Barrier Reef. It adopted an ecosystem approach, assessing all habitats and species, ecosystem processes and major uses. By then considering the factors affecting the ecosystem, coupled with an assessment of management effectiveness, it provided a risk-based forward-looking projection for the ecosystem. Rarely has such a comprehensive, ecosystem-based report been produced to guide government action. With no pre-determined path to follow for interpreting the legislative requirements, the Great Barrier Reef Marine Park Authority (GBRMPA) developed a repeatable structure and method for Great Barrier Reef Outlook Reports that impartially and consistently considers the evidence and clearly presents the findings. The GBRMPA worked closely with relevant Australian and Queensland Government agencies as well as researchers, industry representatives and the community while developing the report. That such a report must be produced every five years allows an overview of the effectiveness of management responses to be regularly assessed. It also provides a transparent means of highlighting and tracking emerging risks facing the Great Barrier Reef.     

The importance of marine spatial planning in advancing ecosystem-based sea use management

During the past 10 years, the evolution of marine spatial planning (MSP) and ocean zoning has become a crucial step in making ecosystem-based, sea use management a reality. The idea was initially stimulated by international and national interest in developing marine protected areas, e.g., the Great Barrier Reef Marine Park. More recent attention has been placed on managing the multiple use of marine space, especially in areas where conflicts among users and the environment are already clear, e.g., in the North Sea. Even more recent concern has focused on the need to conserve nature, especially ecologically and biologically sensitive areas, in the context of multi-use planning of ocean space. Despite academic discussions and the fact that some countries already have started implementation, the scope of MSP has not been clearly defined. Terms such as integrated management, marine spatial management, and ocean zoning are all used inconsistently. This is one of the reasons why its importance is not more seriously reflected at the levels of policy and decision-making in most countries. This article attempts to deal with this problem. It describes why MSP is an essential step to achieve ecosystem-based sea use management, how it can be defined and what its core objectives are. The article concludes with an analysis of the use and achievements of MSP worldwide, with particular focus on new approaches in Europe.     

Effective governance of a large and complex cross-jurisdictional marine protected area: Australia's Great Barrier Reef

Australia's Great Barrier Reef is the largest coral reef ecosystem on earth. The governance of such a large and iconic area is complex due to the overlapping federal and state (Queensland) jurisdictions. Since 1975 this globally significant area has been protected by pioneering federal legislation which enabled the ‘reasonable use’ of natural resources to co-exist with conservation, thus introducing the concept of a multiple-use marine park. In 1981 the Great Barrier Reef was listed as a UNESCO World Heritage Area. Today a federal multiple-use Marine Park covers 99% of the Great Barrier Reef Region and World Heritage Area, with the remaining areas under state jurisdiction. A close working partnership between the federal and state governments has evolved over 37 years and includes complementary legislation, joint field management and joint permits. In the face of increasing pressures, management of the Great Barrier Reef continues to be effective for a range of reasons, including a sound governance/legislative framework together with complementary federal/state legislation; integrated management with relevant federal and state agencies; and the application of ecosystem-based management principles both inside and outside the area of the marine park's jurisdiction. This integrated and comprehensive management model is widely regarded as effective by marine and coastal managers around the world.     

The need and practice of monitoring, evaluating and adapting marine planning and management—lessons from the Great Barrier Reef

An increasing number of scientists and resource managers recognise that successful marine management approaches, including marine spatial planning (MSP), cannot occur without effective monitoring, evaluation and adaptation. These basic components are necessary to ensure that any marine planning or marine management measures are both effective and efficient. While a number of fundamental principles for marine monitoring, evaluation and adaptive management exist, there are varying levels of understanding about how these should be undertaken and what they may achieve. Challenges include the development of realistic and measurable objectives and indicators against which effectiveness can be practically measured. The matter becomes even more complicated as the focus of marine planning and management strategies changes from ‘single species’ to ‘habitats’ and ‘ecosystems’ that may enable a diversity of permitted uses consistent with a variety of overall objectives. Over the last 30 years, the Great Barrier Reef Marine Park (GBRMP) has successfully established a multiple-use spatial management approach that allows both high levels of environmental protection and a wide range of human activities. Drawing on this unique long-term experience in the GBRMP, this article discusses key aspects of effective monitoring and evaluation, and summarises lessons learned from over two decades of adaptive management.     

Co-management and protected area management: Achieving effective management of a contested site,lessons from the Great Barrier Reef World Heritage Area (GBRWHA)

Marine protected management has gained acceptance as a way forward to achieve enhanced biodiversity outcomes. Simultaneously, co-management has gathered momentum as a mechanism to incorporate indigenous cultural aspirations within environmental management domains. Each management process has its own methodologies; when the two models intersect, they present a number of challenges to overall management outcomes. We review the journey of an indigenous co-management initiative within a marine protected area (MPA), the Great Barrier Reef World Heritage Area (GBRWHA), Australia, to explore how different management paradigms intersect with both negative and positive results. We argue that lessons learned from this initiative will help participants to adapt and innovate, so as to implement effective on ground management despite the region being a contested site.     

The value of recreational fishing in the Great Barrier Reef, Australia: A pooled revealed preference and contingent behaviour model

Given the focus on protecting natural assets in the Great Barrier Reef Marine Park in Australia, it is important for managers and policy makers to understand the value of recreational fishing in the area, and how changes in management may affect those recreational values. Travel cost methods were used to estimate the value of recreational fishing in the Capricorn Coast in Central Queensland using data from on-site surveys conducted at boat ramps. The study also uses contingent behaviour models to estimate the change in the value of recreational fishing as conditions vary. Results indicate that there are high values associated with recreational fishing activity along the Capricorn Coast, and that the demand for recreational fishing is inelastic and that values are relatively insensitive to changes in catch rates.     

Socio-economic aspects of artificial reefs: Considerations for the Great Barrier Reef Marine Park

Artificial reefs are used to enhance recreational fishing and diving opportunities in the marine environment. Until recently, demand for artificial reefs in the Great Barrier Reef Marine Park (GBRMP) has been low due to the high value placed on the natural ecosystem of the Great Barrier Reef (GBR) and the abundance of fishing and diving opportunities it provides. In the GBRMP, where there are multiple stakeholder groups with diverse and often conflicting values and opinions, the deployment of artificial reefs will be a complex and controversial social issue. We review the available socio-economic literature regarding the deployment, use, and management of artificial reefs, and aim to identify and understand potential socio-economic issues and information gaps surrounding deployment of artificial reefs in the GBRMP. We also outline a strategy to guide decision-making and maximize the socio-economic value of artificial reefs should they be deployed in the GBRMP.     

Engaging the public in climate change-related pro-environmental behaviors to protect coral reefs: The role of public trust in the management agency

The purpose of this study was to investigate the role that stakeholder trust in a management agency, as a source of information about climate change, plays in relationships among antecedents to climate change-related pro-environmental behavior. Data collected from a survey of Australian residents living adjacent to the Great Barrier Reef Marine Park revealed that lower intensities of institutional trust were associated with a less biocentric worldview, a lower reported awareness of consequences of the impacts of climate change, and a lower sense of obligation to adopt pro-environmental behaviors. Findings suggest that managers should attempt to foster the trust their stakeholders have in their agency because when trust increases, stakeholders develop stronger relationships among the antecedents of pro-environmental behavior.     

A process to design a network of marine no-take areas: Lessons from the Great Barrier Reef

In the absence of consensus on the quantity and level of zoning protection required for coral reef and lagoon ecosystems, which process can guide decision makers? The Great Barrier Reef Marine Park Authority (GBRMPA) worked with experts in a collaborative process to develop a set of Biophysical Operational Principles to guide the design of a network of no-take areas. First, 82 expert scientists were asked to provide data and advice on the physical, biological and ecological dimensions of the Great Barrier Reef ecosystem. They recommended that an independent Scientific Steering Committee (the Committee) was set up. How this Committee worked successfully with the GBRMPA staff is detailed here in a manner to enable other resource managers to adopt the process if they are working in data-limited marine environments.     

Benefits and opportunity costs of Australia's Coral Sea marine protected area: A precautionary tale

The paper analyses the benefits and costs of the Coral Sea Marine Reserve which, together with the contiguous Great Barrier Reef World Heritage Area, creates the largest marine protected area in the world. The benefits are found to be minimal, in both anthropocentric and ecocentric terms. Nevertheless establishment and management costs could be in the order of $A20 million and $A13 million, respectively. Meanwhile, serious depletion of the vital fish stocks of the largest tuna fishery in the world in the Western and Central Pacific Ocean—in which Australia is a management partner—continues, as does the rapid erosion of the unique and outstanding values of the Great Barrier Reef. It is concluded that current investment in the creation and management of the Coral Sea Reserve—in the face of the demonstrably urgent needs for investment in the management of marine resources in the near region and in Australia – is problematic.     

An integrated monitoring framework for the Great Barrier Reef World Heritage Area

Monitoring provides important feedback on how social and environmental systems are tracking and whether or not human activities, including management activities, are having an impact. This paper describes an approach applied to develop an integrated monitoring framework to inform adaptive management of the Great Barrier Reef World Heritage Area, a complex, multi-jurisdictional, multi-sectoral marine system of international importance. It identifies the gaps and opportunities to integrate the existing long-term, short-term and compliance-related monitoring and reporting initiatives to provide the information for more effective and efficient (adaptive) management of the Great Barrier Reef World Heritage Area. And as importantly it aligns expectations among different agencies about how monitoring will inform management. Fifty two high priority values, processes and pressures for management were identified along with 65 existing monitoring programs. Developing the monitoring framework was useful in several ways. First it brought together scientists, policy-makers, managers, and other interested stakeholders with different agendas, philosophies and incentives and established a common purpose, lexicon and language for an integrated monitoring program. Second, it highlighted the importance and usefulness of qualitative conceptual models as a framework for focused discussion around a set of hypotheses with relevance for management. Third, the process started an important conversation about defining and setting a realistic number of monitoring priorities for management. Finally, it has provided direction for how to build on existing initiatives to develop an integrated monitoring program for a globally significant world heritage area.     

Implementing marine reserve networks: A comparison of approaches in New South Wales (Australia) and New Zealand

Marine reserve networks are an essential and effective tool for conserving marine biodiversity. They also have an important role in the governance of oceans and the sustainable management of marine resources. The translation of marine reserve network theory into practice is a challenge for conservation practitioners. Barriers to implementing marine reserves include varying levels of political will and agency support and leadership, poorly coordinated marine conservation policy, inconsistencies with the use of legislation, polarised views and opposition from some stakeholders, and difficulties with defining and mapping conservation features. The future success of marine reserve network implementation will become increasingly dependent on: increasing political commitment and agency leadership; greater involvement and collaboration with stakeholders; and the provision of resources to define and map conservation features. Key elements of translating marine reserve theory into implementation of a network of marine reserves are discussed based on approaches used successfully in New Zealand and New South Wales (Australia).     

Choosing a fishery’s governance structure using data poor methods

Multi-species fisheries are complex to manage and the ability to develop an appropriate governance structure is often seriously impeded because trading between sustainability objectives at the species level, economic objectives at the fleet level, and social objectives at the community scale, is complex. Many of these fisheries also tend to have a mix of information, with stock assessments available for some species and almost no information on other species. The fleets themselves comprise fishers from small family enterprises to large vertically integrated businesses. The Queensland trawl fishery in Australia is used as a case study for this kind of fishery. It has the added complexity that a large part of the fishery is within a World Heritage Area, the Great Barrier Reef Marine Park, which is managed by an agency of the Australian Commonwealth Government whereas the fishery itself is managed by the Queensland State Government. A stakeholder elicitation process was used to develop social, governance, economic and ecological objectives, and then weight the relative importance of these. An expert group was used to develop different governance strawmen (or management strategies) and these were assessed by a group of industry stakeholders and experts using multi-criteria decision analysis techniques against the different objectives. One strawman clearly provided the best overall set of outcomes given the multiple objectives, but was not optimal in terms of every objective, demonstrating that even the “best” strawman may be less than perfect.     

Identifying biologically and physically special or unique sites for inclusion in the protected area design for the Great Barrier Reef Marine Park

A method to identify special and/or unique sites was developed when reviewing the zoning of the Great Barrier Reef Marine Park. Fifty-three (totalling approximately 10,445 km²) of 408 sites were identified as special or unique based on the amount, detail and nature of justification; geographic explicitness; type of information sources; number of independent sources; and national or international obligations. All but four special or unique sites increased in protection after the Zoning Plan was revised, increasing the area of no-take protection for all special or unique sites from 1614 km² (15.4%) to 4013 km² (38.4%).     

The convergence of Integrated Coastal Zone Management and the ecosystems approach

The primary role of the Integrated Coastal Zone Management model was to arbitrate conflicts between stakeholders in a living and natural resource environment characterized by a common property and open access doctrine. A chronology of events describes how the development and acceptance of an ecosystems approach policy began to converge and coincide with the spread and development of Integrated Coastal Zone Management. Those organizations that gave representation to the conservation ethic became internationally recognized as surrogate natural resource ‘users’, the interests of which possessed commonality with all stakeholder interests in general. The tenants of conservation policy were therefore largely employed to decide the merits of disputes over ocean and coastal resources.In the 1990s, scientists created a forum to debate, better define, and institutionalize a sound basis for ecosystem management theory and practice. Protocols were developed that embedded science in living and natural resources planning and management. These protocols were shaped and adopted to serve an evermore contemporary Integrated Coastal Zone Management model. Improvements in methodology include the use of adaptive management, ecological modeling and monitoring, appropriate temporal and spatial scales, salient indicators, and stakeholder participation. This contemporary approach is dependent upon recognizing the benefits inherent in utilizing instruments capable of managing resources on a holistic level.Bioregional planning and zoning accommodate the successful management of resources on this level. It is a direct outcome of the convergence of Integrated Coastal Zone Management and the ecosystems approach. Bioregional zoning schemes are capable of traversing the private property and common property doctrines that define the respective terrestrial and aquatic environments of the coastal zone.A comparative case study of the Great Barrier Reef Marine Park and the Belize Marine Protected Area Program is included as an annex, the analysis of which is predicated upon the principles espoused in the literature.     

Spatiotemporal modelling for policy analysis: Application to sustainable management of whale-watching activities

Anticipating the impacts of a new policy before implementation on a complex social–ecological system is a challenging task for managers and policymakers. This paper reports on the development and use of an agent-based model (ABM) dedicated to support marine park managers in their effort to devise policies to sustainably manage whale-watching activities. The ABM, called the Marine Mammal and Maritime Traffic Simulator (3MTSim), represents the spatiotemporal dynamics of marine mammals and navigation activities in and around the Saguenay–St. Lawrence Marine Park in Canada. In the context of updating the current regulations on whale-watching in the Marine Park, 3MTSim was run to evaluate the merits of a proposed set of rules compared to the current regulations. To do so, a set of variables related to policies’ impacts on the three spheres of sustainable development, namely the impact on whales (Environment), on whale-watching companies (Economy), and tourist experience (Society) was analysed. 3MTSim's simulations highlighted that the proposed rules are expected to improve the situation regarding whale conservation and tourist experience with only marginal impact on the whale-watching industry. In the proposed regulations, one rule is expected to be very influential on whale-watching activities. This rule limits to 10 the number of whale-watching boats allowed to stand within 926 m of any boat in observation mode. Assuming efficient law enforcement, 3MTSim predicts a significant decrease in overall boat concentration around whales in the Marine Park, which is one of the management objectives benefiting both whales and tourists. Interestingly, 3MTSim reveals that this rule could indirectly force some boats to observe second-choice whales present in higher abundance rather than some more attractive species scarcer in the region. This highlights the following management tradeoffs: Reducing boat exposure for the humpback whale and endangered blue whale is likely to increase it for the more abundant fin whale listed as of special concern (Canada's Species at Risk Act) and minke whale. This work demonstrates the utility of ABMs to support policy analysis in the context of sustainable management in a Marine Park. ABMs developed in close relationship with end-users are unarguably a tool of choice to manage complex social–ecological systems since they provide insight into phenomena hard or impossible to measure in the real system. Despite the labour intensive nature of their implementation, this investment is worth the effort.     

Marine conservation policy in Seychelles: Current constraints and prospects for improvement

The marine assets of Seychelles are fundamental to the national economy through generating income derived from tourism and fisheries. Marine management institutions and policies have undergone radical changes since 2008, reflecting a number of drivers and initiatives at international and national levels. Through using the example of Curieuse Marine National Park in the inner Seychelles, we demonstrate how these are affecting marine conservation with respect to coastal development, governance of marine protected areas and livelihood security within resource-dependent communities. These issues are of significance with respect to the current and future viability of marine conservation and resource management in Seychelles. Potential mitigating strategies are suggested which could lead to more effective governance and conservation of marine protected areas in Seychelles and similar small island developing states.     

Using Memoranda of Understanding to facilitate marine management in Canada

Like many other coastal states, management of Canada’s offshore areas is complicated by the division of authority among differing government departments and agencies. However, as a Confederation, this administrative complexity in Canada is further exacerbated by the jurisdictional division of powers between the Federal Parliament and the Provincial Legislatures. The most common tool for overcoming this division and facilitating cooperation are formalized non-binding agreements known as Memoranda of Understanding (MOUs). While there are a large number of MOUs in existence in Canada, few are being implemented. In part, this is because the non-binding nature of the agreement means that either party may discard their obligations at will. This has led to many useful MOUs being discarded and years of work and resources expended negotiating these agreements being wasted. This paper discusses the findings from three such agreements, each focusing on efforts to manage Canada’s offshore resources. It highlights the importance of six factors capable of increasing the likelihood that any given MOU aimed at collaboration between different authorities will be successful. These factors include: a foundation of cooperation, clear statement of priorities, feasible and adaptable work plans, integration at various management levels, a legislative foundation, and adequate financial resources.     

The South East Regional Marine Plan: Implementing Australia's Oceans Policy

In 1998, the Australian Government released Australia's Oceans Policy (AOP), a world first policy initiative focused on providing a framework for integrated ecosystem-based management of Australia's vast marine domain. The South East Regional Marine Plan, the first regional marine plan to be implemented under AOP, was released on 21 May 2004. This paper argues that although full integration across sectors and jurisdictions has not occurred, new AOP initiatives, institutions and governance processes have considerably increased sectoral and jurisdictional coordination in the South East region.